LDF

Local Development Framework

Draft Interim Hackney Central Area Action Plan

(Phase 1) - Masterplan
March 2009

DEVELOPMENT PLAN DOCUMENT

FOR PUBLIC PARTICIPATION
CONTENTS
PART I: Context and Analysis 7.3 Approach to crossings and junctions
7.4 Cycle Routes
Chapter 1: Introduction 7.5 Public Transport
1.1 Purpose of the Masterplan 7.6 Parking Strategy
1.2 Who is it for & How can it be used? 7.7 Servicing Strategy
1.3 Method and Approach
1.4 Status of the Masterplan Chapter 8: Theme 5- Promoting forward thinking
1.5 Masterplan Overview sustainable regeneration strategies
8.1 Introduction - The Energy Strategy
Chapter 2: Context “The place and its people” 8.2 Energy hierarchy
2.1 Taking the Wider View 8.3 Energy reduction and efficiency guidance
2.2 The Study Area 8.4 Supply strategy
2.3 Masterplan Development 8.5 Energy service company
2.4 Hackney Central consultation 8.6 General considerations for renewables
2.5 The Local Context 8.7 GLA renewable energy compliance
2.6 Summary SWOT 8.8 Biomass guidance
2.7 Key Issues 8.9 Low carbon landmarks
2.8 Options Development

PART III: Shaping Local Character

PART II: The Masterplan Framework
Chapter 9: Character Areas and Opportunity Sites
Chapter 3: The Masterplan Vision 9.1 Character Areas and Sites Overview
3.1 Masterplan Vision 9.2 Area 01: Mare Street East
3.2 Masterplan Themes and Objectives 9.3 Area 02: Amhurst Road
9.4 Area 03: Mare Street
Chapter 4: Theme 1 - Promoting high quality urban 9.5 Area 04: St John-at Hackney Church
design for Hackney Central 9.6 Area 05: Civic Heart
4.1 Reinforcing character and identity 9.7 Area 06: Mixed Employment
4.2 Enhancing town centre legibility 9.8: Area 07: Traditional Streets
4.3 Addressing severance 9.9 Area 08: Kenmure Triangle
4.4 Locating tall buildings 9.10 Area 09: Horton Road
4.5 Maximising benefits of opportunity areas 9.11 Area 10: Clarence Mews
9.12: Area 11: Clarence Road
Chapter 5: Theme 2 - Enhancing the public realm 9.13: Area 12: Residential Estates
5.1 The importance of the public realm
5.2 Principle public spaces
5.3 Points of arrival PART IV: Moving Forward
5.4 A clear street hierarchy
5.5 Play and Recreation Spaces Chapter 10: Delivery and Implementation
5.6 Management and Maintenance 10.1 Introduction
10.2 Delivery constraints and opportunities
Chapter 6: Theme 3 – Ensuring a functional town 10.3 Responding to the market
centre for living, working and shopping 10.4 Council ownership
6.1 Land use strategy 10.5 Private sites
6.2 Retail Strategy 10.6 Funding
6.3 Housing Provision 10.7 Phasing
6.4 Employment Provision 10.8 Risks
6.5 Community Facilities 10.9 Conclusion
6.6 Development Content 10.10 Moving Forward

Chapter 7: Theme 4 - Establishing a coherent and

attractive movement network APPENDICES
7.1 A hierarchy of movement and access A Relevant London Plan Objectives
7.2 Pedestrian movement B Technical Energy Tables
LIST OF FIGURES AND TABLES
PART I: Context and Analysis 9.3 Design principles and constraints for
1.1 Stages of the Masterplan Project character area 01
2.1 Hackney Central and Dalston context 9.4 Proposal for character area 01: Option 01
2.2 The masterplan boundary 9.5 Proposal for character area 01: Option 02
2.3 Listed buildings and conservation area 9.6 View south towards proposed new town
2.4 Crossrail 2 safeguarded land square
2.5 Constraints summary 9.7 Indicative schematic Option 1
2.6 Opportunity sites 9.8 Indicative schematic Option 2
2.7 Option 1 9.9 View west along Morning Lane
2.8 Option 2 9.10 Proposal for Character Area 02
2.9 Option 3a 9.11 View towards Hackney Central station
2.10 Option 3b 9.12 Schematic of station plaza site
2.11 Option 4 9.13 Station Plaza opportunity site
3.1 A vision for Hackney Central 9.14 Proposals for character area 03
3.2 The urban design framework 9.15 The Narrow Way northern gateway site
9.16 Indicative schematic of Mare Street
character area
PART II: The Masterplan Framework 9.17 Proposal for Character Area 04
4.1 Character areas 9.18 The Rectory opportunity site
4.2 Legibility 9.19 Indicative schematic of The Rectory site
4.3 Barriers to movement 9.20 Proposal for Character Area 05
4.4 Indicative building heights 9.21 Indicative schematic of Character Area 05
4.5 3D image of the Masterplan area 9.22 Proposal for Character Area 06
4.6 Cross-section through the 9.23 Indicative schematic of Hackney Yards
Masterplan area 9.24 Hackney Yards opportunity site
5.1 Areas for public realm enhancement 9.25 Character Area 07: Traditional Streets
5.2 Town Hall Square 9.26 Hackney Lanes opportunity site
5.3 St John-at-Hackney Churchyard 9.27 Indicative schematic of Hackney Lanes
and Gardens opportunity site
5.4 New Town Square 9.28 Character Area 08
5.5 New connecting routes 9.29 Indicative schematic of Kenmure Triangle
5.6 Gateways and Nodes 9.30 Indicative schematic of Horton Road
5.7 Hierarchy of routes 9.31 Proposal for Character Area 09
5.8 Play strategy 9.32 Proposal for Character Area 10
6.1 Land use plan 9.33 Indicative schematic of Clarence Mews
6.2 Retail strategy diagram 9.34 Proposal for Character Area 11
6.3 Proposed community infrastructure 9.35 Indicative schematic of Clarence Road
7.1 Context map for London Borough 9.36 Proposal for Character Area 12
of Hackney 9.37 Indicative schematic of the Trelawney Estate
7.2 Vehicular movement network 9.38 Indicative schematic of the Marcon Estate
7.3 Pedestrian strategy 9.39 Indicative schematic of the Trelawney Estate
7.4 Cyclist strategy
7.5 Parking, access and servicing strategy
8.1 Energy strategy Tables
8.2 Energy hierarchy 2.1 Masterplan Scoping opportunity sites table
2.2 SWOT audit and analysis
3.1 Masterlpan themes and objectives
PART III: Shaping Local Character 5.1 Proposed quantums of playable space
9.1 Proposed character areas 8.1 CO2 reduction and cost
9.2 Opportunity sites block reference diagram 9.1 Opportunity sites

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PART I - CONTEXT AND ANALYSIS
This section describes the Hackney Central Masterplan area and
summarises the analytical work undertaken to date, which serves as a
foundation for the Masterplan.
01 Introduction and Background
1.1 Purpose of the Masterplan
A Masterplan is a comprehensive strategy for
co-ordinated development and design in an area
that reflects local aspirations for the future of that
area. A Masterplan helps to guide development
and provides confidence and certainty to developers
and other public sector bodies that their proposals
are grounded.
Where a masterplan allocates land, as in the
case of this masterplan, it must be prepared as
an Area Action Plan.
The overall purpose of the Hackney Central
Masterplan will be to establish the basis for
shaping the regeneration of the area. It will ensure
the continued and enhanced role of Hackney
Central as an important Town Centre and civic
heart to the borough, responding to the needs
of future communities and housing growth over
the coming years.
The regeneration of Hackney Central will seek
to address:
• Town Centre liveability: through social and
physical regeneration, including better streets
and linkages, buildings, housing, community and
cultural facilities as well as providing new public
open spaces, especially enhanced green and
play spaces;
• Strengthened local character and enhanced
heritage: by encouraging community-led
development and facilitating an integrated and
balanced town centre that is attractive as a place
to live, work, visit and invest;
The Civic heart, Mare Street shops and wealth of historic character capture much of the essence that is Hackney Central.
• Stronger definition of the town centre as the
‘civic heart’ to the borough and as a key civic
and cultural hub within London;
• To provide quality local retail and amenities
for the people of Hackney Central, inspiring
developers and stakeholders by illustrating how
the area can be improved; and,
• The quality of the public realm through a
focus of investment in key routes and spaces,
introducing areas of new public open space, and
means of access to facilities.
The Masterplan will meet these objectives by:
• identifying the key strengths and weaknesses of
the town centre;
• ascertaining the issues that currently affect the
town and may influence the town’s future;
• setting out the principles and parameters for
new development to take place - site design,
capacities, uses, funding and phasing;
• defining the principles for environmental
enhancement to take place identification of
local distinctiveness, character areas,
improvement areas;
• identifying areas to improve the public realm and
introduce new public open space and community
facilities; and,
• assessing the practicalities of co-ordinated
development and land assembly.
The Masterplan guides the overall regeneration of
Hackney Central, providing more specific detail than
the emerging Core Strategy. An important aspect of
the Masterplan is the promotion of high quality,
sustainable mixed-use development.
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 Hackney Central Masterplan Steering Group (Council officers, key
Stage 1: Masterplan Scoping

Informal Community Consultation

stakeholders, etc.) Consultation/Meetings

Stage 2: Initial Options
Equalities Impact Assessment

Ward Members Consultation and Design Review Panel

Sustainability Appraisal
Stage 3: Consultation Draft Masterplan
(current stage)

Stage 4: Consultation
Formal Consultation with Community, Stakeholders, Ward Members

Stage 5: Finalise Masterplan (Phase 1 AAP)

1.2 Who is it for how can it be used?
The Council will use the Masterplan to:
• identify potential for growth including residential
in mixed-use development;
• co-ordinate development within the town
centre area;
• ensure an appropriate mix of land uses, and
thus allocate land;
• assess developer proposals; and,
• forecast future service and community
facility needs.
This draft Masterplan establishes a strategic
framework identified through a series of policies and
principles, setting out the policy context (in addition
to the emerging Core Strategy) for development
proposals coming forward within Hackney Central
town centre. These principles will be used to inform
development and proposals throughout the area
and assess planning applications. Developers, land
owners, stakeholders, residents; neighbourhood
organisations and community organisations can use
this document to:
• identify suitable locations for new developments;
• identify what density is appropriate and how
they can integrate developments into the
surrounding context;
• identify what land uses are suitable on
specific sites;
• identify what types of developments the Council
is planning for the area as a whole as well as
specific sites; and
• to forecast future service needs.
All developers, individuals and organisations should
work with the Council to achieve the principles
set out in this document to inform proposals. The
Policy/Design Principles are set out in a higlighted
box throughout each theme and character area.

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1.3 Method and Approach
The project programme so far has been structured
in the following stages:
Stage 1: Masterplan Scoping & Initial Consultation
Stage 2: Initial Options
Stage 3: Consultation Draft Masterplan
(current stage)
Stage 4: Public Consultation/Public Participation
Stage 5: Finalise Masterplan (Phase 1 AAP)
These stages have resulted in two document
parts, namely Part 1 – Hackney Central Masterplan
Scoping and Baseline Report which consists of
background supporting material which informed
Part 2 – the Draft Hackney Central Area Action Plan
(Phase 1) – Masterplan (this document).
Following public consultation of this draft
Masterplan, the Council will take into account all
comments received to produce a final Phase 1
Area Action Plan to be endorsed by Cabinet.
Following the endorsement of Phase 1 and the
adoption of the Core Strategy, a Phase 2 Draft
Hackney Central Area Action Plan will be prepared
to reflect the adopted Core Strategy which will then
be consulted on. Following public consultation and
subsequent amendments made to the document
resulting from comments received during the
consultation period, the Phase 2 AAP will be
adopted by Council as the final Hackney Central
Area Action Plan.
Sustainability Appraisal
Underpinning the approach to the development of
the Masterplan is the process of formulating and
undertaking a Sustainability Appraisal (S.A.) for the
key stages of the project. An SA has informed the
preparation of the Masterplan and should be read in
conjunction with this document.
Equalities Impact Assessment
The Masterplan is accompanied by an initial
Equalities Impact Assessment that examines what
effect the Masterplan’s implementation may have on
different groups in the community. A full Equalities
Impact Assessment will be produced during the
drafting of the Submission version.
1.4 Status of the Masterplan
This document has been prepared during a time
of change within the current planning system. The
Unitary Development Plan (UDP) is progressively
being replaced by the Hackney Local Development
Framework (LDF). Hackney’s Core Strategy
Preferred Options Report has undergone statutory
public consultation in April and May 2008.
This Masterplan has been prepared as a Draft
Area Action Plan (Phase 1) process as part of the
Local Development Framework (LDF). It provides
policy and design guidance to be used as part
of the development control process and to help
inform investment decisions. As a Development
Plan Document, this Masterplan will be a material
consideration in the assessment of planning
applications, and will be able to allocate land use.
On advice from the Government Office for London,
Hackney Central Area Action Plan will follow the
Core Strategy process to ensure consistency and
conformity. This document therefore is Phase 1
of this AAP process; it replaces the existing Issues
and Options Hackney Central Area Action Plan
(2005). Once the Core Strategy is adopted, the
AAP will be developed from this Phase 1 stage
into a consultation document, and taken forward
as a development plan document for full adoption.
Consultation feedback from earlier stages and
baseline information has therefore been fed into the
production of this Masterplan.
1.5 Masterplan Overview
This document is the culmination of the first three
stages of work and sets out a strategic urban
framework that will guide future development in the
Town Centre.
This masterplan also identifies the main ‘opportunity
sites’ in Hackney Central and these represent the
areas where change is most likely to occur and sets
out possible development scenarios for these sites.
It puts forward an urban design-led approach to
the regeneration of the area, with an appreciation of
context as a means of informing appropriate design
solutions. It also provides illustrative examples
for each opportunity site to show how they could
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 develop based upon strategic urban design and
development principles.
The document is presented in four parts:
PART I – Context and Analysis
This section describes the Hackney Central
Masterplan area site and summarises the analytical
work undertaken to date, which serves as a
foundation for the Masterplan.
PART II – Masterplan Framework
This section establishes the over-arching urban
design framework and the development principles.
This section also sets out the key topics of the
Masterplan in terms of indicative preferred building
footprints, a public realm strategy, land use,
indicative building heights, movement and access
and community infrastructure.
PART III – Shaping Local Character
This section outlines design parameters for each
of the areas within the town centre, aiming to
strengthen the character and unique identity that
8
already exists. Detailed development proposals are
envisaged and illustrated on a site-by-site basis.
Some sites are shown as having different ‘scenarios’
to indicate different possibilities for development,
dependent on land assembly, viability, cost, etc. The
development proposals are indicated in both plan
form and three-dimensionally, to provide a general
sense of the overall massing of the proposed
development on site.
PART IV – Moving Forward
This section provides the overall strategy for
implementation and sets out which projects,
measures and actions are required for successful
delivery of the Masterplan.
Matrix Partnership Ltd – Lead Consultants, Urban
Design and Planning
Ramboll Whitbybird Ltd – Transport, Energy and
Sustainability
Bernard Williams Associates – Land Assembly and
Development Economics
02 Context: the place and its people
2.1 Taking the wider view
Masterplans are being prepared in parallel for both
Dalston and Hackney Central town centres to
ensure that a complementary planning strategy is
pursued for each location. Dalston and Hackney
Central are the Borough’s two main existing town
centres and as such will be the focus for new retail,
commercial, leisure and other related development
over the coming years. Dalston is the Borough’s
foremost centre and is designated a Major Town
Centre in the London Plan. Whilst Hackney Central
is designated as a lower order District Town Centre,
with the area a major focus for regeneration over the
plan period, it is possible that growth will lead to it
becoming elevated in planning policy terms.
Both Masterplans also need to capitalise on
major new planned rail infrastructure, such as
the remodelling of both Dalston Kingsland and
Hackney Central North London Line stations as part
of the Overground Network. In Dalston, planned
extensions to the East London Line are potentially
to be accompanied by a new Hackney-Chelsea
line station, transforming the way that the centre
is connected to the London rail network. The
development pressures that this new infrastructure
will bring provides both challenges and
opportunities for considering how each centre
is to evolve in the future.
Whilst both centres are major focal points for
shopping, Dalston is primarily a comparison
shopping destination (i.e. non-food such as clothing)
and Hackney Central is largely a convenience
shopping centre (i.e. food). At present too much
spending power leaves the borough. It is therefore
necessary to encourage the provision of more and
higher quality shopping and services to encourage
local residents to shop more locally for a wider range
of goods and services. However, there is a finite
quantum of such development that can be spread
in market economic terms between the two
centres (and to a much lesser extent smaller
centres) and so it is important that a complementary
retail strategy is pursued in each location.
Each centre has much in common in terms of
future planning provision but also it is important
to recognise the ‘unique selling points’ that sets
each place apart and gives its special character. In
Dalston, there are three fundamental influences that
shape the dynamic of the area:
• Kingsland High Street, a lively thoroughfare that
is in parts somewhat run-down characterised by
small, independent shops and services, many
catering to the area’s ethnically diverse population
in terms of food and other specialist products;
• Ridley Road Market, a bustling street market that
draws from a wide catchment area; and
• the prevalence of creative industries and
organisations that are located in the area,
including a lively evening economy of clubs
and bars.
Although there are overlapping characteristics,
Hackney Central is notable for:
• the Town Hall, Hackney Empire Theatre and other
related facilities establishing this as the civic heart
of the borough;
• the intimate qualities of the Narrow Way, flanked
by St John’s-at-Hackney Church and churchyard,
an area with a distinctive feel, though undermined
at present by all day traffic congestion; and
• like Dalston, the area is increasingly becoming
a focus for cultural and creative activities, some
transferring from Shoreditch.
The strategic intention is to ensure a well-balanced
offer, with two complementary poles of regeneration
activity, each specified to strengthen local
distinctiveness and character.
9
 Figure 2.1 Hackney Central and Dalston town centres context

10
2.2 The Hackney Central Masterplan Study Area
The Hackney Central Masterplan Area comprises
and area of 36.7 hectares and is situated centrally
within the London Borough of Hackney and east
of Dalston town centre. The Masterplan site area
was identified to incorporate what is commonly
identified as the town centre area, including the
principal shopping length of Mare Street and the
Narrow Way, the Town Hall, Amhurst Road and the
stretch of Morning Lane that includes the Tesco site.
The Marcon and Trelawney Estates are also included
along with St John-at-Hackney church and gardens.
Figure 2.2 illustrates the study boundary.
2.4 Hackney Central Consultation
As part of Stage I: Masterplan Scoping (Baseline), an
informal community consultation event was held on
Wednesday 9th April between 11 a.m. and 7 p.m.
outside the Old Town Hall. The aim of the consultation
was to get a snapshot of what
issues are most important to those who use the
town centre and how they would like to see
development of the Masterplan move forward. The
consultation/exhibition did not put forward any
proposals for development but rather stressed the
fact that future change could take many forms,
from public realm improvement to new buildings.
Feedback from the consultation was provided on
questionnaires filled out during the consultation event
or returned in the following weeks. A total of 85
responses were received.
Analysis of the consultation feedback reveals
the following:
• The majority of people liked the public open spaces
and local amenities Hackney Central had to offer;
• Being part of a diverse and multi-cultural
2.3 Masterplan Development
The draft Hackney Central Masterplan has evolved
through various meetings and consultation events
with key stakeholders and the local community. In
December 2007 the London Borough of Hackney
organised a steering group for the Masterplan,
which included members from the Council, TfL,
the GLA and the LDA. Throughout the project
there have been informal and formal meetings with
(amongst others): the Masterplan Steering Group;
the local community (see Section 2.4); Crossrail;
Network Rail; LBH Streetscene; St John-at Hackney
church; Tesco; and, Arriva.
community is important to the local people;
• Respondents were keen to see bus and traffic
congestion resolved, most notably along the
Narrow Way;
• 75% of respondents like the streets and spaces in
Hackney Central with the majority of people using
them for shopping;
• 51% of respondents do not find it easy to move
around Hackney Central. Road safety is the
primary reason;
• 85% agreed with the opportunity sites identified.
• Most respondents would like to see traditional
and affordable housing and tended to prefer
development to retain and foster existing
local character;
• 74% of respondents thought Hackney Central
would benefit from a more diverse retail offer. The
feedback suggests that there is no clear desire by
the local people for new, large supermarkets; and,
• Generally, respondents are keen to refurbish
rather than demolish.
11
 Figure 2.2 The Masterplan boundary

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Fig. 2.3 above identifies the listed buildings and conservation
area to be taken into account in the masterplan.
Fig. 2.4 above identifies the constraints presented by the CTRL
and safeguarded land and the proposed Chelsea-Hackney Line
(Cross Rail2)
2.5 The Local Context
This masterplan has been informed by the Hackney
Central Scoping Report (February 2008). The
scoping study was commenced as the initial stage
in the preparation of the Masterplan. Its purpose
was to undertake an audit and analysis of the town
centre to provide a comprehensive environmental
baseline. The report forms a background document
to accompany the Masterplan.
The Scoping Report considered a wide range of
issues and identified both the strengths of the area
as well as the challenges it faces. In particular the
scoping study examined:
• Character Areas;
• Site and Context Analysis e.g. land use, open
space etc.;
• Access and Movement;
• Energy;
• Planning Policy and Initiatives;
• Constraints and Opportunities; and,
• Opportunity Sites.
A summary of the key physical constraints is
provided in Figure 2.5. These identify some of the
key aspects of the baseline analysis, including issues
of legibility, frontage, tall buildings, character settings
and open space/public realm quality.
The following is a summary of the issues identified:
• Barriers to movement - The presence of high
level railway lines restricts the ability of people to
move around Hackney Central, especially north-
south movement through the railway bridge which
forms both a physical and psychological barrier.
• Hostile pedestrian/cycle environment -
Congested roads, narrow pavements and some
poorly overlooked locations create a difficult
environment to get round for some people. These
can also, in effect, act as a barrier to getting
around.
• Conservation Areas and listed buildings -
Large parts of the Masterplan area are designated
as conservation areas in recognition of their
historic and architectural importance.
A number of listed buildings are also present.
They provide areas of positive character and
will need to be respected by future
development proposals.
• Improve legibility - e.g. Strategic views and local
views to well-known landmarks provide important
signals to help people find their way around.
Where possible these views should be preserved.
13
 Figure 2.5 Constraints summary

14
• Important Settings - Key public buildings and
streets are viewed within a wider setting or
particularly well-defined area. Hackney
Town Hall Square and St John-at-Hackney
churchyard and gardens are notable ‘set piece’
spaces that emphasise the importance of
these public buildings.
• Gateways and nodes - These denote important
points of entry into the Masterplan area, such as
Town Hall Square, signaling that you have ‘arrived’
in the town centre. Minor nodes also indicate
other places of activity or locations of significance
such as secondary junctions or crossings. Many
would benefit from improvements to reinforce their
function.
• CTRL and Proposed Chelsea Hackney line
(Crossrail 2 - CR2) safeguarded land - Large
parts of the area are safeguarded for the future
CR2 project. This means that proposals for
development within this area will need to
consult with Crossrail to ensure they do not
compromise the project.
• The Narrow Way and Amhurst Road junction -
The Narrow Way is a distinctive meandering street
but the quality of the environment is compromised
by heavy bus congestion. The junction with
Amhurst Road and Mare Street would benefit
from significant improvements
of its public spaces.
• Public Transport - Hackney Central is well served
by two railway stations and numerous bus routes.
Development in this area should maximise its
relationship with these public transport assets,
improving their viability.
• Areas for tall buildings - The Hackney Tall
Buildings Strategy (2005) has previously identified
several areas where taller buildings might be able
to be accommodated. The tower blocks on the
Trelawney Estate are already visually prominent
structures in one of these areas.
• Opportunity Sites - A range of opportunity sites
have been identified where there may be scope
for change or refurbishment of existing buildings.
The two single largest areas are the Tesco’s and
Bus Garage sites and these potentially offer the
greatest scope for change.
• Edges - Many streets are well-defined by strong
building lines, creating clear edges to the street.
Other areas contain weakly-defined edges,
particularly on Morning Lane.
• Frontages - Many building frontages include
positive lively facades, such as along Mare Street,
with shops and businesses generating activity.
Others are inactive or ‘dead’ frontages and create
poor streets that can feel unsafe. Where possible
these should be addressed.
As part of the baseline analysis, a group of
opportunity sites within the Masterplan area
were identified where development and/or
improvements are most likely. Some of these
sites present opportunities for new development
and others are more suited for refurbishment or
other site improvements. Some of the sites
included have been granted planning permission
and the schemes planned for these sites are
included within the Masterplan for the purposes
of completeness and providing the development
context for the Masterplan.
The opportunity sites are listed in Table 2.1 and
shown on Figure 2.6 over leaf.
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 Figure 2.6 Opportunity sites

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 2.6 Summary SWOT Analysis
Hackney Central Masterplan The issues and considerations emerging from
Scoping Report Opportunity Sites the Hackney Central Scoping Report reveal that
Site

the area has many positive attributes, as well

Site Name as challenges. These also present potential
1 Amhurst Triangle opportunities for improvement, although certain
2 Clapton Bus garage issues pose potential threats to change. The
3 2-20 Morning Lane Strengths, Weaknesses, Opportunities and Threats
(SWOT) are summarised in Table 2.2 [overleaf].
4 356 Mare Street, The Rectory
5 Land rear of 392-396 Mare Street
6 23-25 Sutton Place
7 Land adj. 1 Sutton Place
8 Trelawney Estate
9 Hackney Central and Hackney Downs
Station upgrading
10 Service First Centre
11 280 Mare Street
12 Florfield Road Depot
13 199-205 Richmond Road
14 Tesco site Morning Lane
15 250-352a Bohemia PLace
16 298-300 Mare Street
17 Ocean Venue, Mare Street
18 5-13 Morning Lane
19 302 Mare Street
20 Car Sales Yard between 229 and 239
Graham Road
21 224-238 Mare Street
22 354 Mare Street (Old Town Hall)
23 117 Wilton Way
24 70 Sylvester Road
25 1-10 Great Eastern Buildings, Reading Lane
26 3-13 Lower Clapton Road
27 Marcon Estate and Aspland Estate
Table 2.1 Scoping Report Opportunity Sites

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 Strengths
• Historic buildings
• Cultural diversity
• Strong local landmarks
• Good open spaces and trees
• Excellent public transport links
• A clear High Street character
• A clear focus for civic activities
• A good mix of uses in the town centre
• Areas of positive historic and architectural character
• A variety of independent traders and national chains
Weaknesses
• Traffic congestion i.e. bus and car congestion, especially bus congestion on the Narrow Way
• Poor connections to railway stations
• Low quality of pedestrian environment
• Limited uses within existing public open spaces
• Inactive frontages and weakly defined streets in some areas
• Restricted north-south connections
• Limited connections east of Mare Street
• Railways divide the area
• Areas of poor architectural quality / townscape
• Low perception of safety
• Limited retail offer
Opportunities
• A range of locations and potential for change / improvement, including sites within the heart of
the town centre
• Potential improvements to connections through the area, both east-west and north-south
• More improved shopping facilities
• Enhanced pedestrian environment / streetscape
• Reduced traffic dominance
• New and improved public open spaces
• Opportunities to improve connections to and enhance existing stations
• Enhance areas of weak townscape / character
• Potential to address the perceived safety of some areas
• Good potential for sustainable forms of development
Threats
• Ad hoc “piecemeal” development
• Missed opportunities through uncoordinated development of key opportunities sites
• Continued traffic congestion
• Inappropriate/poorly designed development could harm existing character
• Low perceptions of safety

Table 2.2 SWOT (Audit and Analysis Summary)

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Understanding the Place
2.7 Key Issues
Key issues and themes emerging from the Scoping
Report study were:
• Retention and enhancement of the Conservation
areas with specific attention to those areas that
exhibit clear character settings
(e.g. the Narrow Way);
• Opportunities for taller buildings are influenced by:
• areas along rail alignments where the CTRL and
Crossrail will constrain development potential;
• backland areas within existing housing estates;
and
• areas where sensitivity to existing traditional
housing will be required and character;
• Key local and strategic view corridors;
• Reinforcing of a number of major nodes across
the area and attention to more local gateways as
shown;
• Areas requiring significant public realm
enhancement, especially aligned with key routes
into the town centre (e.g. Amhurst Road,
Mare Street);
• Reinforcing of connections into the open green
spaces to the northeast of the area around St
John-at-Hackney church and improvements to
the grounds themselves;
• Addressing the key intersection at Mare Street,
Amhurst Road and the Narrow Way including the
intersecting rail infrastructure; and,
• Addressing comprehensively the Tesco and bus
garage locations.
2.8 Options Development and Summary
Four preliminary options were developed based on
the key issues arising out of the Masterplan Scoping
Report. They represented a holistic response to
the over-arching issues of the current lack of a
high quality public realm, open space, accessibility,
economic vitality, and active frontage.
Each option was developed in sufficient detail to
indicate block layouts and building footprints. The
options were also tested in terms of site needs,
transportation and energy implications. The options
were illustrated in plan form to convey the massing
and form.
The four options have been prepared as the basis of
discussion and a comprehensive evaluation has yet
to be applied. They seek to convey a sliding scale -
from the ‘do minimum’ to the ‘do maximum’. Option
1 - the minimum option - represents a way forward
with no planning-led intervention, whilst Option 4
seeks more significant redevelopment to re-integrate
parts of the town centre with the existing fabric. With
greater levels of change comes a greater ability to
create a shift in overall character and introduce new
uses into the area.
Clearly at the lower end of the scale, policy
objectives relating to such issues as open space and
play facilities, for example, will fail to be met. There
will also be fewer planning obligations generated
to invest in community infrastructure. However,
the upper end of the scale raises major delivery
questions - both from a policy perspectives (e.g. the
quantum of retail floor space and the impact of this)
and in terms of funding and logistics. Comprehensive
change will require significant land assembly and
establishing co-ordinated solutions such as an
integrated town centre - wide energy solution will be
far from easy.
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 The SA assisted in the assessment of Options and
led to the propositions for the site scenarios set out
in Part III.
A combination of Options 2 and 3b was selected,
subject to further refinement, modifications and
more detailed proposals. This combination puts
forward the most significant positive change for the
town centre whilst maintaining and strengthening
the existing character and providing a new and
improved public realm network.
2.8.1 Option 1 Overview
Option 1 sets out a development scenario that
could emerge where there to be no significant
planning-led intervention. Design development is
predominantly based on a ‘sites-led’ approach
where sites likely to come forward through the
market are the key drivers.
This option does not therefore capture the potential
of Hackney Central as would a comprehensive
approach. It does, never the less, allow for known
sites to be brought forward and, where possible,
seeks to recycle value for wider public realm
improvements (e.g. along Morning Lane).
The key development proposals include:
• Development of the ‘Tesco’ site south of the
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railway and fronting onto Morning Lane in
accord with current Tesco proposals tabled
at ‘pre-application’ discussions. Development
includes new 80,000 sq.ft (7,400sq.m) store
with 100 residential flat units above. Localised
improvements to the streetscape and highways
along Morning Lane.
• Redevelopment of a number of mixed use
sites along the southern and northern edges
of Morning Lane towards the junction with
Mare Street.
• Sites granted planning permission or under
construction that include Sutton Place,
Richmond Road and 239-257 Graham Road.
Option 1 was discarded because it does not
facilitate significant positive change for the town
centre. By not proposing any significant new
public open space or enhancements to major
road arteries. As such, it does not redress the
inadequacies of the public realm quality
identified in the Scoping Report.
Furthermore, the residential development capacity
is low, significantly less than that identified if London
Plan density recommendations were applied
(see Masterplan Scoping Report).
Figure 2.7 Option 1 Vision

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 2.8.2 Option 2 Overview
Option 2 examines the development scenario
that could result from a ‘moderate’ amount of
intervention. The proposal therefore identifies a
greater number of ‘peripheral’ sites that could
come forward (e.g. the site west of the railway
off Richmond Road) as well as considering a
reconfigured Tesco development south of the
railway along Morning Lane. A key proposal is
also the proposition to relocate the bus garage
to a basement facility, allowing a new residential
development at grade with high quality public realm.
The key development proposals include:
• Development of the ‘Tesco’ site south of the
railway and fronting onto Morning Lane.
Development includes a new 9,300sq.m store
over 2 levels, delivery/storage of 2,600sq.m. with
180 residential flat units above.
• Redevelopment of the bus garage site to
basement facility to allow for new at-grade
residential-led development with an element of
office use.
• Additional smaller scale retail units (with residential
units above) addressing the new link between
Morning Lane and Mare Street/the railway.
These screen the unsightly backs of the existing
buildings along Mare Street.
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• Refurbished Town Hall to include environmental
technologies as exemplar for retro-fitting existing
buildings.
• The Rectory site, adjacent Learning Trust
buildings and yard are comprehensively
addressed.
• 3-13 Lower Clapton Road and 2-20 Morning
Lane are comprehensively developed with mixed
retail and residential development.
• Sites on Wilton Road/Sylvester Street are
comprehensively developed around existing
buildings to be retained.
• Sites on Reading Lane developed for mixed
residential/commercial uses.
Option 2 was considered in part because there would
a better provision of public realm improvements
throughout the town centre and the new public link
proposed off Morning Lane connecting through to the
arches would facilitate greater pedestrian permeability.
In addition, the residential development capacity in
Option 2 is a significant increase on Option 1. The
retail floor space delivers over the amount of provision
in the Hackney Retail and Leisure Capacity Study
(9,200sqm net additional in the Borough).
Figure 2.8 Option 2 Vision

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 2.8.3 Option 3a Overview
Option 3a envisages significant change around
the area of major potential - focusing on the
Tesco and Bus Garage sites with an improved
Hackney Central station entrance. Under this
scenario, there will be major public open space
improvements along the southern edge of
St John-at-Hackney gardens and much
greater east-west permeability.
This option builds upon the development sites likely
to come forward under Option 2 which are also
envisaged to occur under this option. The south-
eastern end of Amhurst Road is redeveloped to
provide higher quality and higher density residential
development, greatly improving the streetscene of
this street.
Public realm enhancements are more significant
but focused primarily on improvements to the areas
surrounding the core area and associated junctions
to assist pedestrian movement.
The key development proposals include:
• Tesco’s is relocated to the north side of the railway
above a newly constructed bus garage located
beneath the store.
• The existing Tesco site is redeveloped.
• New residential development south of the railway
and fronting Morning Lane.
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• A new public space is created in front of the
Trelawney Estate with enhanced pedestrian
connections and links south to Paragon Road.
• The public space adjacent to the Old TownHall is
remodelled.
• The Rectory site, adjacent Learning Trust
buildings and yard are comprehensively
addressed.
• 3-13 Lower Clapton Road and 2-20 Morning
Lane are comprehensively developed.
• Sites on Wilton Road/Sylvester Street are
comprehensively developed around existing
buildings.
• Sites on Reading Lane developed.
Option 3a was dismissed because of the
complexities of the land swap between Tesco and
the bus garage, but also because of the scale of
the development. It was not felt to be appropriate to
introduce a large format retail development adjacent
to the sensitive setting of the church gardens.
This option however delivers a major residential-led
mixed-use offer along Morning Lane.
Figure 2.9 Option 3a Vision

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 2.8.4 Option 3b Overview
Option 3b focuses on a variation to the major
opportunity area east of Mare Street and focusing
on the Tesco and Bus Garage sites. Under this
scenario development is re-organised to resolve
access constraints currently impacting on the bus
garage (bottle neck with single access in/out).
The bus garage is located south of the railway
under a ‘land swap’ arrangement with Tesco. The
Garage benefits from better access off Morning
Lane, better internal circulation and a new exemplar
town centre facility.
The benefits to Tesco include a much more visible
frontage onto the primary shopping route (Mare
Street / the Narrow Way) and frontage onto what will
become a new high quality public open space at the
Old Town Hall.
This option also builds upon the development sites
likely to come forward under Option 2 which are also
envisaged to occur under this option.
Public realm enhancements are more significant
but focused primarily on improvements to the areas
surrounding the core area and associated junctions
to assist pedestrian movement.
The key development proposals include:
• Tesco relocated to the north side of the railway
26
with a new 8,400sq.m store.
• The bus garage moves south of the railway.
• A new high quality public route is provided to
connect Trelawney Estate to the bottom of
narrow Way.
• A new public space is created in front of the
Trelawney Estate with active ground floor uses.
• The public space adjacent to the Old Town Hall is
enhanced.
• Key ‘peripheral’ sites are developed.
• The Rectory site, adjacent Learning Trust
buildings and yard are addressed.
Elements of Option 3b were dismissed (as with
Option 3a) because of the complexities of the land
swap between Tesco and the bus garage. Similarly
it was not felt to be appropriate to introduce a large
format retail development adjacent to the sensitive
setting of the church gardens.
Option 3b was, however, partly selected for
the treatment to the backs of Mare Street and
the design of the new pedestrian routes through
the arches.
Figure 2.10 Option 3b Vision

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 2.8.5 Option 4 Overview
Option 4 seeks to radically transform the character
of retail and public realm offer. At present the centre
has a well established civic quarter but no clearly
defined retail heart. This lack of retail centrality
results in a dispersed rather than consolidated
retail-focus. A new large retail development
co-located with a new high quality urban piazza
at the junction of Narrow Way, Mare Street and
Amhurst Road is proposed. Existing retailers (e.g.
M&S) would be re-provided in the new retail centre
with the bus garage located in basement.
The key development proposals include:
• Redevelopment of the bus garage site
• Significant new retail accommodation (19,000sq.
m) that would provide for 2 new anchor stores.
• Development of the Tesco site south of the railway
to allow for new north-south pedestrian route.
• New mixed use retail/residential addressing the
new north-south link between Morning Lane and
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the Old Town Hall open space.
• New public piazza at junctions of Narrow Way/
Mare Street/Amhurst Road.
• New Hackney Central station.
• The Rectory site, adjacent Learning Trust
buildings and yard are addressed.
• 3-13 Lower Clapton Road and 2-20 Morning
Lane are comprehensively developed.
• Sites on Wilton Road/Sylvester Street are
comprehensively developed.
• Sites on Reading Lane developed.
Option 4 was discarded primarily because of the
scale of the proposed new piazza described above.
It was felt that the character of the area - that of
tight-knitted development should be retained. It was
also not deemed appropriate to introduce a large
quantum of new retail (new anchor stores) adjacent
to the church gardens.
Figure 2.11 Option 4 Vision

29